Chapter 10 The Higher Command Structure for Joint ADF Operations David Horner An effective command structure for ADF operations is one of the most important requirements for the defence of Australia and its interests. Civilian strategic analysts sometimes dismiss their military colleagues' apparent obsession with command. In their view, issues of international relations, strategic and defence policy, force development and budgets are the heart of strategic analysis. But command is fundamental to a military organisation. Put simply, it is the means by which the government's wishes are translated into military outcomes. As the Vice Chief of the Defence Force (VCDF), Vice-Admiral Russ Shalders, put it in 2005, the number one outcome for the ADF, as endorsed by the government, is the conduct of operations.1 Command is not just about giving orders and ensuring that they are carried out. It is also about ensuring that the right orders are givenÐthat the plans both reflect government policy and are achievable. There are, of course, two elements to command. The first is the ability of individual commanders to complete their tasks, and this depends on personal qualities, such as technical knowledge, courage, robustness and character. The second element is the command structure. Commanders can only operate within the bounds of their legal authority and within the structures available to them. The command structure includes headquarters, from the strategic to the tactical levels, the communications links between them, and the intelligence systems to inform them. This chapter focuses on the second elementÐthe higher command structure for joint operationsÐas the most relevant to an enquiry into the broader aspects of defence policy. The general principles of command are well-known, and most military commanders would agree that unity of command is paramount. Napoleon Bonaparte declared: `Nothing is so important in war as an undivided command', and Britain's First World War Prime Minister, Lloyd George, said: `It is not a question of one general being better than another, but of one general being better than two.'2 Yet, for all these fine sentiments, it has not always been easy to achieve unity of command for joint operations. 143 History as Policy The word `joint' refers to activities, operations and organisations in which elements of more than one Service of the same nation participate. According to the ADF's `capstone' doctrinal publication, The Australian Approach to Warfare, the `integration of the capabilities of the three Services (Navy, Army and Air Force) in joint operations' is a `key warfare' concept. The publication continues: For Australia, the conduct of joint operations, rather than single-Service operations, is a matter of practical necessity. It is the effective integration of thought and action at all levels of command to achieve the common goal that produces a synergy in the conduct of operations, which is the strength of our joint warfare approach.3 The importance of joint operations is a relatively new phenomenon. In earlier times, navies and armies generally conducted their operations separately. When they needed to cooperate, this was normally achieved by a coordinating conference. It was extremely rare for an army officer to command ships or for a naval officer to command army units. It was the advent of aircraftÐor more specifically the formation of separate air forcesÐthat provided the impetus for the development of concepts for the command of joint operations. Nowadays, it is difficult to think of major land or maritime operations in which aircraft are not involved. Yet, ironically, it is possible to think of purely air operations, such as strategic bombing campaigns. While military men have espoused the idea of unity of command, they have been less inclined to accept the idea of an officer of one Service exercising command over the combat forces of another Service. Yet this is what needs to happen if joint command is to be exercised effectively. The modern-day understanding of joint warfare and joint command stems from the Second World War. An early example was when Admiral Louis Mountbatten was appointed Chief of (so-called) Combined Operations in 1941. A more enduring example was when the allies set up joint theatre commands such as the Pacific Oceans Command, the Southwest Pacific Area, and Southeast Asia Command. General Douglas MacArthur, Commander-in-Chief of the Southwest Pacific Area, commanded all naval, land and air forces in his area. But what is the record of the development of joint command in Australia? Forty years ago, two events occurred that were to have a fundamental effect on the development of the joint command structure for Australian military operations. The first of these was the appointment, on 17 April 1966, of Major General Ken Mackay as Commander Australian Force Vietnam (COMAFV), and the second was the appointment a month later, on 19 May 1966, of Lieutenant General Sir John Wilton as Chairman CSOC. We will return to the importance of these two appointments and how they changed Australian joint command arrangements a little later, but first we need to consider the extent to which Australia had developed joint command arrangements before then. 144 The Higher Command Structure for Joint ADF Operations Before Vietnam Until 1966, Australian forces had little experience of joint operations. Yet, ironically, if we leave aside Australia's limited contribution to the Boer War after Federation in 1901, Australia's first military operation was actually a joint undertaking. Soon after the outbreak of the First World War in August 1914, the Australian Commonwealth Naval Board directed Rear Admiral Sir George Patey RN, commander of the Australian Fleet, to mount an expedition to seize German New Guinea. A Department of Defence publication has described this expedition as `the first Australian joint military operation conceived, planned, organised, and executed by Australia with overall political direction leading back to the Government of Australia'.4 This is not quite correct. In fact, the expedition was undertaken at the urging of the British Government and against the advice of the Australian Chief of Naval Staff, Vice-Admiral Sir William Creswell. In his view the British and Australian naval forces in the Pacific would have been better used to seek out and destroy the powerful German units operating in the western Pacific.5 Patey's land force commander, Colonel William Holmes, led the Australian Naval and Military Expeditionary Force, which consisted of two battalionsÐone a militia battalion and the other composed of naval troopsÐwith little in the way of supporting arms. From the arrival of the fleet near Rabaul to the German surrender, the operation lasted less than six days. It was so swift and uncomplicated, the planning so unsophisticated and the enemy so weak, that it was a campaign in name only. It hardly provides any basis for developing an Australian tradition for joint command and planning at the operational level. There were no other instances of Australian joint command in the First World War. Rather, Australia's army and navy units fought separately, under British command. After the war, no effort was made to develop joint command arrangements in Australia. In time of war it was expected that the major fleet units would be deployed under Admiralty control. If an enemy tried to attack Australia, the forces defending a major port, such as Sydney, Melbourne or Newcastle, would be commanded separately, although the local commanders would form a committee to coordinate their activities. This idea of a command by committee was taken up in the early years of the Second World War. Nationally, command was exercised by the COSC, assisted by a Central War Room and a Combined Operational Intelligence Centre located at Victoria Barracks, Melbourne. In 1941 area combined headquarters were established at various locations such as Townsville, Melbourne, Fremantle and Darwin to coordinate the defence of those locations.6 As in the First World War, Australian forces deployed overseas operated separately under British command. Once Australia faced the threat of invasion in 1942 some joint command arrangements were introduced. For example, the 145 History as Policy Commander of Northern Territory Force, a major general, was given authority to command all army, navy and air force units in his area once a land attack had started or was `clearly imminent'.7 General Douglas MacArthur, the American general appointed Commander-in-Chief Southwest Pacific Area in April 1942, commanded all the allied forces in his command. But he did not form joint subordinate commands. Thus, when General Sir Thomas Blamey commanded New Guinea Force during the New Guinea offensives in 1943, he needed to coordinate his land operations with those of the commanders of the Allied Naval and Air Forces. Ultimate authority rested with MacArthur. On one notable occasion, the Commander Allied Naval Forces (Vice Admiral Arthur Carpender) refused to allow the Commander New Guinea Force (at that time Lieutenant General Sir Iven Mackay) to reinforce Finschhafen. After a plea from Blamey (who had returned to Australia from New Guinea), MacArthur intervened and ordered the reinforcement.8 A significant feature of the command structure was that the Australian Chiefs of Staff did not have operational command of their own forces.9 The Australian Commander-in-Chief British Commonwealth Occupation Force (BCOF) in Japan between 1946 and 1950 was both a joint and combined commander, but he did not conduct war-like operations. During the Korean War the Commander-in-Chief BCOF became the Commander-in-Chief British Commonwealth Force Korea. He was the Australian national commander as well as being responsible for the administration of the British Commonwealth forces, but he had no operational responsibility whatsoever. The commanders of the RAN ships, the Australian infantry battalions (and later the 28th Commonwealth Brigade) and the RAAF fighter squadron operating in Korea were all responsible to either British or American single-Service superiors.